Focusing public attention on emerging privacy and civil liberties issues

Whole Body Imaging Technology and Body Scanners ("Backscatter" X-Ray and Millimeter Wave Screening)

Introduction

EPIC has filed a lawsuit to suspend the deployment of body scanners at US airports, pending an independent review. Body scanners produce detailed, three-dimensional images of individuals. Security experts have described whole body scanners as the equivalent of "a physically invasive strip-search." The Transportation Security Administration operates the body scanner devices at airports throughout the United States. On July 2, 2010, EPIC filed a petition for review and motion for an emergency stay, urging the District of Columbia Court of Appeals to suspend the Transportation Security Administration's (TSA) full body scanner program. EPIC said that the program is "unlawful, invasive, and ineffective." EPIC argued that the federal agency has violated the Administrative Procedures Act, the Privacy Act, the Religious Freedom Restoration Act, and the Fourth Amendment. EPIC cited the invasive nature of the devices, the TSA's disregard of public opinion, and the impact on religious freedom.

Top News

  • Supreme Court to Hear Case About Enhanced Search Techniques: The US Supreme Court has decided to review Florida v. Jardines, a case that addresses whether a dog sniff at the front door of a home is a search that requires probable cause. This case follows Illinois v. Caballes, a 2005 case in which the Court held that a dog sniff around a car during a routine traffic stop was not a search. The Florida Supreme Court ruled that Caballes was inapplicable in the case, and that a dog sniff in front of a home is a Fourth Amendment search. This case also implicates the government's use of "enhanced" investigative techniques that are designed to detect contraband. Because these techniques are imperfect and also allow the government to search for material that is not illegal, EPIC has argued that a Fourth Amendment probable cause standard should apply. For more information, see EPIC: EPIC v. DHS (Airport Body Scanners). (Jan. 6, 2012)
  • EPIC Asks Court to Require Release of Documents About Body Scanner Radiation Risks: EPIC has filed a reply motion in EPIC v. DHS, No. 1:11-cv-01991-ABJ, a Freedom of Information Act lawsuit for information, held by the DHS, about the radiation risks of airport body scanners. EPIC is asking the court to force the agency to disclose documents about radiation testing results, agency fact sheets on radiation risks, and an image produced by the machines. A recent report from ProPublica states that the "U.S. Government Glossed Over Cancer Concerns As It Rolled Out Airport X-Ray," and the European Union recently prohibited the use of "back-scatter x-ray" devices in EU airports. EPIC has already obtained hundreds of pages of documents discussing the risks of radiation exposure. For more information, see EPIC: EPIC v. DHS - Full Body Scanner Radiation Risks. (Dec. 5, 2011)
  • Congress, Public Call for TSA Reform: Republican Members of Congress have released "A Decade Later: A Call for TSA Reform," a staff report examining the effectiveness of the Transportation Security Administration, which was formed shortly after the September 11th attacks. The Report blasted the failure of the TSA to improve aviation security while spending billions dollars on ineffective equipment and programs including airport body scanners that are "easily thwarted." Over 30,800 people have signed a petition to the White House to abolish the TSA. The Obama Administration has promised to formally respond to any petition that receives 25,000 signatures (formerly 5,000). In a lawsuit filed by EPIC, a federal appellate court found that the TSA had violated the law by deploying full-body scanners at airports nationwide without first soliciting public comment. For more information, see EPIC: Whole Body Imaging Technology and Body Scanners. (Nov. 18, 2011)
  • European Union Limits Use of Airport Body Scanners: The European Union has adopted strict new guidelines limiting the use of body scanners at EU airports. Under the new guidelines, European Union member states may only deploy airport body scanners if they comply with new regulations that protect health, privacy, and fundamental rights. The European Commission has also prohibited any devices that store, record, or transfer images of travelers as well as devices that display an image of the naked human body. As a result, backscatter x-ray devices are now effectively prohibited in airports in the European Union. The European Commission has also made clear that passengers may not be required to go through body scanners, following the conclusion reached by the federal appellate court in the United States in the EPIC v. DHS case, which held that passengers have a legal right to opt-out of body scanners. The body scanners have not done well during trials in Europe. Most recently a test in Germany found that the devices were ineffective. For more information, see EPIC: Whole Body Imaging Technology and EPIC: EPIC v. DHS (Suspension of the Body Scanner Program). (Nov. 14, 2011)
  • Citing Unreliability, Germany Rejects Airport Body Scanners: After extensive testing, Germany has decided not to deploy body scanners at the nation's airports. Germany field-tested the scanners with more than 800,000 passengers over ten months and concluded the devices produced too many false alarms and were not effective. In an interview with ABC News EPIC’s John Verdi said, "when they can't distinguish between body sweat and explosives, they aren’t making anyone safer." Italy also recently removed the scanners from airports after the Italian Civil Aviation Authority concluded that they were inaccurate and inconvenient. EPIC has petitioned a federal appeals court to rehear the organization's challenge to the controversial program, citing erroneous findings that the devices would detect liquid and powdered explosive. For more information, see EPIC: EPIC v. DHS (Suspension of Body Scanner Program). (Sep. 2, 2011)
  • Documents Reveal New Details About DHS Development of Mobile Body Scanners: EPIC has obtained more than one hundred fifty pages of documents detailing the Department of Homeland Security’s development of mobile body scanners and other crowd surveillance technology. The documents were obtained as a result of a Freedom Information Act lawsuit brought by EPIC against the federal agency. According to the documents obtained by EPIC, vehicles equipped with mobile body scanners are designed to scan crowds and pedestrians on the street and can see through bags, clothing, and even other vehicles. The documents also reveal that the mobile backscatter machines cannot be American National Standards Institute “certified people scanners” because of the high level of radiation output and because subjects would not know they have been scanned. For more information see EPIC: Whole Body Imaging Technology and EPIC: EPIC v. DHS (Suspension of the Body Scanner Program). (Aug. 31, 2011)
  • EPIC Files for Rehearing in Airport Body Scanner Case: Citing significant errors in an earlier decision, EPIC has petitioned a federal appeals court to rehear the organization's challenge to the TSA's controversial body scanner program. "The court overstated the effectiveness of the body scanner devices and understated the degree of the privacy intrusion to the travelling public," stated EPIC President Marc Rotenberg. EPIC's petition challenged the Court's finding that the devices detect “liquid and powders," which was never established and was not claimed by the government. EPIC also argued that the court wrongly concluded that the TSA is not subject to a federal privacy law that prohibits video voyeurism. The panel found that TSA body scanner employees are “engaged in law enforcement activity," contrary to the TSA's own regulations. EPIC is pursuing related litigation on the government's deployment of mobile body scanners. For more information, see EPIC: EPIC v. DHS. (Aug. 30, 2011)
  • DHS Refuses to Disclose Details of Mobile Body Scanner Technology: New documents released by the Department of Homeland Security to EPIC indicate the the agency continues to hide details about body scanners. In November 2010, EPIC filed a Freedom of Information Act request with the agency regarding the deployment of body scanners in surface transit and street-roving vans. In its latest document release the agency supplied several papers that were completely redacted. As a result of the agency's failure to comply with the Freedom of Information Act, EPIC has filed suit to force disclosure of the records. For more information, see: EPIC: Body Scanner Technology and EPIC: FOIA Note #20. (Aug. 17, 2011)
  • TSA Expands Behavioral Profiling at Boston Airport: The Transportation Security Administration has begun training screeners at Logan International Airport in Boston to engage in behavioral profiling of air travelers. The program authorizes Transportation Security Officers to ask airline passengers personal questions concerning their travel plans and employment. Some travelers will be subjected to additional, invasive searches based on their responses. For more, see EPIC: Air Travel Privacy. (Aug. 3, 2011)
  • TSA Announces Installation of "Stick Figure" Software for Some Body Scanners: The TSA has announced that it will begin installing software on millimeter wave body scanners that will display a generic stick figure on a computer monitor and not the naked bodies of individual air travelers. The TSA said this will address privacy concerns. However, there is no plan to install similar software on the more widely used backscatter x-ray devices. It is also still unclear whether t the body scanners are capable of capturing, storing, or transferring the underlying graphic naked image. Seeking to answer this question, EPIC filed a lawsuit, following the TSA's failure to provide an adequate response to EPIC's FOIA request. For more information see: EPIC: Body Scanner Technology. (Jul. 21, 2011)
  • TSA Broadens Use of 'Backscatter X-Ray' Machines That Conduct 'Virtual Strip Searches': The Transportation Security Administration is expanding the use of "backscatter X-ray" systems for passenger screening. The $100,000 refrigerator-size machines use "backscatter" technology, which bounces low-radiation X-rays off of a passenger to produce photo-quality images of travelers as if they were undressed. Computer processing partially obscures the image that is available to operators. TSA states that the agency will delete the raw images, but there is no law or regulation that prevents the agency from saving the original, detailed images. Until there is such a prohibition, EPIC believes funding for the program should be suspended. See EPIC's Spotlight on Surveillance and page on Backscatter X-ray. (October 11, 2007)
  • Field Tests Begin in Arizona on Backscatter X-Ray Machines: An X-ray machine aimed at detecting weapons and explosives hidden on passengers is scheduled to make its debut Friday at Phoenix's Sky Harbor International Airport. The "backscatter" will be in operation at Security Checkpoint B in Terminal 4. While any Terminal 4 ticketed passenger can pass through any checkpoint, the B concourse is primarily used by travelers on Tempe-based US Airways. (February 21, 2007)
  • Phoenix Airport to Use 'Backscatter' X-Ray on Travelers: Sky Harbor International Airport here will test a new federal screening system that takes X-rays of passenger's bodies to detect concealed explosives and other weapons. The technology, called backscatter, has been around for several years but has not been widely used in the U.S. as an anti-terrorism tool because of privacy concerns. (December 1, 2006)

Background

Post-September 11, airline travel security has invoked the increased use of technology and better training of security personnel as a means of improving travel security. Some of these proposals, such as improved training for airport screeners, checking all bags for bombs, strengthening cockpit doors, and placing air marshals on flights, do not implicate privacy interests and are sound security measures. Others, however, present privacy and security risks to air travelers because they might create data files directly linked to the identity of air travelers. These files if retained could provide the basis for a database of air traveler profiles. The Transportation Security Administration utilizes two technologies to capture naked images of air travelers - backscatter x-ray technology and millimeter wave technology.

In 1895 x-rays1 were discovered by Wilhelm Röntgen.2 This discovery of how to look through an object to observe details beneath has advanced to include new techniques. One such technique called "backscatter" X-Ray is based on "the emergence of radiation from that surface of a material through which it entered. Also used to denote the actual backscattered radiation.3"

backscatter imageThe application of this new x-ray technology to airport screening uses high energy x-rays that are more likely to scatter than penetrate materials as compared to lower-energy x-rays used in medical applications. Although this type of x-ray is said to be harmless it can move through other materials, such as clothing.

A passenger is scanned by rastering or moving a single high energy x-ray beam rapidly over their form. The signal strength of detected backscattered x-rays from a known position then allows a highly realistic image to be reconstructed. Since only Compton scattered x-rays4 are used, the registered image is mainly that of the surface of the object/person being imaged. In the case of airline passenger screening it is her nude form. The image resolution of the technology is high, so details of the human form of airline passengers present privacy challenges.

Airport security has undergone significant changes since the terrorist attacks of Sept. 11, 2001. Recently, the Transportation Security Administration (TSA) announced a proposal to purchase and deploy "Whole Body Imaging" X-ray machines to search air travelers at all airports. TSA said it believes that use of the machines is less invasive than pat-down searches. However, these machines, which show detailed images of a person's naked body, are equivalent to a "digital strip search" for all air travelers. This proposal, along with the agency's controversial plan to profile air travelers, shows extraordinary disregard for the privacy rights of air travelers. The Department of Homeland Security is requesting $72 million to invest in detection systems, which includes funding for the backscatter machines, which cost between $100,000 and $200,000 each.

The backscatter machines use high-energy X-rays that are more likely to scatter than penetrate materials as compared to lower-energy X-rays used in medical applications. Although this type of X-ray is said to be harmless, it can move through other materials, such as clothing. When being screened, a passenger is scanned by high-energy X-ray beam moving rapidly over her body. The signal strength of detected backscattered X-rays from a known position then allows a highly realistic image to be reconstructed. In the case of airline-passenger screening, the image is of the traveler's nude form. The image resolution of the technology is high, so the picture of the body presented to screeners is detailed enough to show genitalia. These images are not necessarily temporary - screeners can save the body images to the system's hard disk or floppy disk for subsequent viewing on either "the system monitor or on any IBM compatible personal computer with color graphics."

Backscatter X-Rays and Transportation Screening

The Transportation Security Administration claims that is not storing detailed images of passengers screened by the system. The agency also states that it is providing a screening option for passengers who object to screening by the technology. However, the technology is designed to accomplish what has been described on this page, and until the process of assuring that the claims of the agency are enforced--questions will remain about the use of the technology. EPIC will make available on this page aviation security and privacy -related documents it obtains from the government under the Freedom of Information Act law about the adoption of "backscatter" x-ray technology intended for use in screening air travelers.

womanThe stated goal of these new proposals is to rely on technology to reduce the "hassle factor" in airports and to reduce security threats. The core idea is to focus security resources on suspicious travelers, while ensuring that most people are not inconvenienced by heightened security. Terrorists, however, have been known to go to great lengths to look like most people. Will a technology that will capture detailed images of potentially all airline travel passengers lead to greater safety? Current technology can successfully detect dangerous substances, firearms and other weapons without backscatter x-ray imaging of passengers. Can the goal of safe air travel be reached without reproducing a digital image of a passenger's body? It has long been recognized by security experts that it is impossible to eliminate all threats to airline travel. Is the application of "backscatter" x-ray technology a deterrent and not a solution to perfect airline travel safety? If this is true, then is the trade off in passenger privacy worth the effort to deter terrorists? The application of security technology and increased passenger screening has also resulted in an increased detection of non-violent criminal offenses. Is the application of "backscatter" x-ray technology to screen airline passengers more than just a means of detecting terrorists?

In 2009, the TSA announced that Whole Body Imaging would replace metal detectors at airport security check points. This is a marked departure from the earlier promises by the agency that the technology would only be used for secondary screening of air travel passengers.

Airports Currently Using Whole Body Imagaing Technology

  • Albuquerque International Sunport Airport
  • Hartsfield-Jackson Atlanta International Airport
  • Baltimore/Washington International Thurgood Marshall Airport
  • Ronald Reagan Washington National Airport
  • Denver International Airport
  • Dallas/Fort Worth International Airport
  • Detroit Metro Airport
  • Indianapolis International Airport
  • Jacksonville International Airport
  • McCarran International Airport
  • Los Angeles International Airport
  • Miami International Airport
  • Phoenix Sky Harbor International Airport
  • Raleigh-Durham International Airport
  • Richmond International Airport
  • San Francisco International Airport
  • Salt Lake City International Airport
  • Tampa International Airport
  • Tulsa International Airport

Jan. 2010 NPC Event Materials

Latest News

Resources

Identification Schemes

Profiling

Other Documents

Analysis

  • Paper on the limitations of profiling, Roger Clark, Australia National University.
  • ACLU testimony before White House Commission on "Civil Liberties Implications of Airport Security Measures" (September 5, 1996).
  • Letter to Privacy Journal editor Robert Ellis Smith from the FAA denying Smith's request for a copy of the FAA Security Directive on identification of airline passengers.
  • HotWired article "Fear of Flying" on proposals. (September 11, 1996).

Other Airline Passenger Screening Resources

  • FAA Proposes Profiling Regulations. The Federal Aviation Administration published proposed regulations on April 19, 1999, governing "Security of Checked Baggage on Flights Within the United States." The draft rules detail the use of computer profiling techniques to identify suspicious passengers.
  • Airline Passenger Profiling Goes Into Effect. The Computer Assisted Passenger Screening System was scheduled to be phased in nationwide beginning on January 1. Under the system, passengers who "fit the profile" will be selected for heightened security measures, which can include a thorough search of their luggage, intrusive personal questioning, tagging of luggage with orange tape, and a physical escort from the check-in counter to the airport gate by security personnel. The ACLU is providing an online complaint form for passengers targeted by the profiling system.
  • Microsoft Chief Architect Charles Simonyi tells what happens when you "fit the profile" (from Slate).
  • Proposed FAA rule for collecting personal information including name, address, Social Security Number, Date of birth and next of kin for every domestic passenger.
  • General Account Office report, Aviation Safety and Security: Challenges to Implementing the Recommendations of the White House Commission on Aviation Safety and Security (Testimony, 03/05/97, GAO/T-RCED-97-90).
  • The Gore Commission has released its final report recommending passenger profiling. A coalition of 17 groups has sent a letter to Gore opposing ID checks, profiling, new x-ray technologies and excessive secrecy by the FAA in making decisions.

Legislative History

HR 1271. FAA Research, Engineering, and Development Authorization Act of 1997. Funds FAA projects for new surveillance technologies such as advanced x-ray systems for individuals. Introduced on 4/10/97 by Morella (R-Md). Referred to the House Committee on Science. Approved by Committee 4/16/97. Reported to the House H. Rept. 105-61 (CR H1714) on 4/21/97. Measure adopted on 4/29/97, RC #95 (414-7), (CR H1995). Referred to Senate Committee on Commerce, Science and Transportation (CR S3843) on 4/30/97.

Bill Passed the Senate: 11/13/1997
Mr. Sensenbrenner moved that the House suspend the rules and agree to the Senate amendments: 2/3/1998
Bill Passed the House by a voice vote: 2/3/1998 3:07pm:
Bill Signed into Law by President Clinton: 2/11/1998
Became Public Law No: 105-155.

References

1http://hyperphysics.phy-astr.gsu.edu/hbase/ems3.html#c4
2http://geology.b.dictonarypage.co.uk/backscatter/
3http://www.absoluteastronomy.com/encyclopedia/X/X/X-Ray_machine.htm
4http://hyperphysics.phy-astr.gsu.edu/hbase/quantum/comptint.html